Balanced Budget: A Report on the East Ramapo Central School … · 2019-01-31 · 1 Commissioner’s Charge to the Monitors On August 16, 2016, New York State Education Department

THE STATE EDUCATION DEPARTMENT / THE UNIVERSITY OF THE STATE OF NEW YORK

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CONTINUING PROGRESS

A Report on the East Ramapo Central School District

December 2018

Charles A. Szuberla, Jr., Monitor

John W. Sipple, Monitor

Denise Lowe, Monitor

(appointed November 2018)

Continuing Progress

A Report on the East Ramapo Central School District

Commissioner’s Charge to the Monitors………………………. 1

2017-18 District Accomplishments……………………………... 1

Enrollment Overview……………………………………………...2

Table 1. Enrollment

Table 2. K-12 Public School Enrollment by Ethnicity

Table 3. K-12 Public School Enrollment - Other Groups

Academic Accountability ………………………………………... 2

Table 4. District and School Accountability Status

Table 5. 3-8 English Language Arts Proficiency

Table 6. 3-8 Math Proficiency

Table 7. Four-year High School Graduation Rate

Enhanced Course Offerings…………………………………...... 4

Table 8. 2018 Advanced Placement Enrollment and Results

Restoration of Staffing Cuts……………………………………...5

Table 9. Staffing Reductions and Restorations

Average Class Size………………………………………………. 7

Table 10. Average Class Size* by Grade Level

Chapter 59 of the Laws of 2017………………………………… 7

Strategic Academic Plan………………………………………… 9

Enhanced Programming…………...…………………………… 15

Fiscal Improvement Plan………………………………………...18

2018-19 Contingency Budget…………………………………...21

Table 11. Sources of Funds to Meet Contingency Budget

Implemented Monitor Recommendations……………………...23

Concerns…………………………………………………………. 23

Recommendations………………………………………………. 24

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Commissioner’s Charge to the Monitors

On August 16, 2016, New York State Education Department (SED or “Department”)

Commissioner MaryEllen Elia appointed Charles Szuberla and reappointed Dr. John

Sipple as monitors (“Monitors”) for the East Ramapo Central School District (“District”)1.

The 2017-18 school year monitoring initiative built on the work conducted by State

monitors since June 2014 and included working with the Board of Education (“Board”)

and District leadership to implement Strategic Academic Improvement and Fiscal

Improvement Plans; improve fiscal and budgetary planning; and provide oversight as

required by Chapter 59 of the Laws of 2017.2 In addition, the Monitors oversaw the

District’s successful completion of Phase II of a $58 million bond proposition to fund

critical capital repairs and projects. This report focuses on the academic and fiscal

condition of the District for the 2017-18 school year.

2017-18 District Accomplishments

1. All student subgroups showed improvement on the grades 3-8 English Language

Arts (ELA) and mathematics State assessments.

2. The New York State Comptroller upgraded the District’s fiscal condition from

“moderate stress” to “undesignated.”3

3. The Board of Education and teachers’ union agreed on a new contract that runs

through June 2021.

4. The District completed Phase II of the $59 million capital construction program on-

time and on-budget.

5. The District added six special education collaborative classes.

6. The District added six teachers in English as a New Language ("ENL") and

bilingual instruction.

7. The District assigned eight teachers to implement effective instruction in the high

schools.

8. The District added 12 teachers for the arts and music.

9. The District implemented a teacher collaboration model at the high schools.

10. The District added academic standards facilitators for all grade levels.

1 Dr. Sipple concluded his work as a monitor on June 30, 2018. 2 Chapter 89 of the Laws of 2016 was amended by section 48 of Part YYY of Chapter 59 of the Laws of 2017 and Chapter 59 of the Laws of 2018. 3 In 2015 and 2016, East Ramapo was classified by the Comptroller as a district in “significant stress.” In 2017, East Ramapo was classified by the Comptroller as a district in “moderate stress.” In 2018, the District did not appear on the list of schools under fiscal stress.

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11. The District expanded summer academic program offerings to include:

o Instrumental music summer camp for grades 4-8 (400 students);

o Computer sciences summer academy for grades 2-8 (250 students);

o Health sciences summer academy for grades 2-8 (250 students);

o Extended school year program for grades K-8 (255 students); and

o Student with Interrupted/Inconsistent Formal Education for grades 9-10 (60

students).

Enrollment Overview

Table 1. Enrollment

Subgroup 2015-16 2016-17 2017-18

Pre-K (Half Day) 1,691 1,686 1,691

Pre-K (Full Day) 100 98 99

K-12 Public 8,472 8,598 8,843

K-12 Non-public 23,834 24,579 26,526

Table 2. K-12 Public School Enrollment by Ethnicity Subgroup 2015-16 2016-17 2017-18

Black or African American 37.0% 34.4% 31.7% Hispanic or Latino 53.1% 56.4% 59.6% Asian/Native American 4.5% 4.2% 3.9% White 4.4% 4.0% 3.9% Multiracial 1.0% 1.0% 0.8% American Indian/Alaskan Native 0% 0% 0.1%

Table 3. K-12 Public School Enrollment - Other Groups

Subgroup 2015-16 2016-17 2017-18

English Language Learners 29% 34% 37%

Students with Disabilities 21% 20% 21%

Economically Disadvantaged 87% 88% 89%

Academic Accountability

The District is currently classified as a focus district. Of the District's 14 schools, six are

focus schools and one is a priority school. Elmwood Elementary School attained “good

standing” status in 2017-18.

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Table 4. District and School Accountability Status

NAME 2017-18 Accountability

Status

EAST RAMAPO CSD (SPRING VALLEY) Focus District

FLEETWOOD ELEMENTARY SCHOOL Good Standing

GRANDVIEW ELEMENTARY SCHOOL Focus School

HEMPSTEAD ELEMENTARY SCHOOL Good Standing

KAKIAT ELEMENTARY SCHOOL Good Standing

MARGETTS ELEMENTARY SCHOOL Focus School

EAST RAMAPO EARLY CHLD CTR AT KAKIAT Good Standing

SUMMIT PARK ELEMENTARY SCHOOL Good Standing

CHESTNUT RIDGE MIDDLE SCHOOL Priority School

SPRING VALLEY HIGH SCHOOL Focus School

POMONA MIDDLE SCHOOL Focus School

ELMWOOD ELEMENTARY SCHOOL Good Standing

RAMAPO HIGH SCHOOL Focus School

LIME KILN ELEMENTARY SCHOOL Good Standing

ELDORADO ELEMENTARY SCHOOL Focus School

State Assessments

A new baseline for State assessments was established in 2018 due to the change from

three- to two-day testing. As a result, proficiency levels cannot be compared with prior

years. Nonetheless, the new baseline on the grade 3-8 State assessments is

encouraging. The Monitors stress an increasingly urgent need to focus on English

Language Learners and students with disabilities whose test results, while improving, are

unacceptably low.

Table 5. 3-8 English Language Arts Proficiency

Subgroup 2016 2017 2018

General Education 28% 28% 32%

Black or African American 21% 24% 31%

Hispanic or Latino 17% 18% 22%

White 35% 36% 40%



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Table 6. 3-8 Math Proficiency

Subgroup 2016 2017 2018




White 31% 36% 39%



High School Graduation Rate

Graduation rates, with the exception of Black students, have steadily declined since 2015.

The Hispanic and Latino graduation rate is unacceptably low, especially compared to the

Statewide graduation rate of 68% for Hispanic and Latino students in 2017. The

graduation rates for English Language Learners and students with disabilities are also

unacceptable and well below the State averages of 27% and 54% respectively. The

District has implemented a new system called Final Five to track all students’ progress

towards graduation and post-graduation plans to ensure struggling students are getting

they extra help to stay on track for graduation. The Final Five tracks attendance/behavior,

Regents exams/grade point average, SAT/ACT exams, completer 200 community service

hours and application to at least one college.

Table 7. Four-Year High School Graduation Rate

Subgroup 2015 2016 2017




White 56% 48% 44%



Enhanced Course Offerings

After years of drastic cuts, the District is now offering Advanced Placement (AP) and other

college-level courses. Last year, 508 high school students out of a total of 2,700 took

advantage of enhanced courses.

Table 8. 2018 Advanced Placement Enrollment and Results

Total AP Students 148

Number of Exams 302

AP Students with Exam Scores 3+ 81

% of Total AP Students with Scores 3+ 54.7%

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College Courses

Thirteen percent of high school students in the District took college courses in 2017-18.

The passing rate for Spring Valley High School students was 95.5% (149 out of 156

students). The passing rate for Ramapo High School students was 97% (198 out of 204

students). College courses taken by East Ramapo students in 2017-18 included:

• English Composition I

• English 101

• College Speech

• Media Communication

• Spanish I

• Algebra

• Physics

• Multicultural Dance

• Public Affairs

• Psychology

Restoration of Staffing Cuts

The District has restored a total of 185.5 positions since the drastic cuts that began in

2008 and were outlined in the November 2015 Hank Greenberg Report. Enrollment has

increased by more than 2,100 students since 2008. A summary of the restorations is listed

below.

This space intentionally left blank. Report continues on the following page.

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Table 9. Staffing Reductions and Restorations

2008-09

2009-12

Cuts

2012-13

Cuts

2013-14

Cuts

2014-15

Cuts

2017-18

Cuts

2018-19

Cuts Total Cuts

Restored as

of 6/30/18

Net

Change

Elementary Teachers 75 75 26 -49

Elementary

Art/MusicTeachers 21 21

Secondary Teachers 93.2 16 109.2 47.5 -61.7

Secondary Art/Music

Teachers 22.5 22.5

Special Education

Teachers 15 15 1 -14

One-on-One Aides 19 5 24 -24

Teaching Assistants 49 15 64 10 -54

Attendance Teachers 1 1 0.5 -0.5

Guidance Counselors 2 2

Family Resource Center

Coordinators 5 5

Substiture Teachers 8.3 8.3 0 -8.3

Social Workers 15 15 1 -14

Supervisors 4 1 5 -5

Academic Standards

Facilitators 4 4

Deans 12.5 12.5 -12.5

Dept. Chairpersons 10 10 -10

Secondary Asst. Princ. 2 2 2 0

Elementary Asst. Princ. 11 11 -11

Building/Grounds

Admin. 1 1 -1

Transportation Admin. 1 1 -1

Central Office Admin. 3 2 5 1 -4

Directors of Secondary

Education 1 1 2 1 -1

Teacher Training for

Technology 1 1 2 -2

Title I Summer Program 1 1 2 1 -1

Coordinator of Health 1 0.5 1.5 -1.5

Nurses 2 1 3 -3

Civil Service 88 2 7 20 17 3 137 40 -97

Totals 397 6.5 45 20 17 21 506.5 185.5 -321

FTE 1,898 1,501 1,495 1,450 1,430 1,413 1,392 1,577

Notes for Staffing Cuts and Restorations Table: 1. Data is based on information supplied by the District and a review of official Board of Education minutes from

September 2008 to June 2018. 2. Due to changes the administrative structure of the District, a direct comparison of staffing levels from year to year

is difficult. For example, Department chairs in secondary education were replaced by Academic Standards Facilitators to focus on instruction and teacher development.

3. Public Pre-K-12 Student Enrollment: 2009: 7,752 (94 pre-K students) 2018: 9,855 (1,790 pre-K students)

4. A significant portion of the reductions in civil service positions is due to privatizing student transportation. 5. Improvements in the personnel office resulted in the District finding multiple candidates for each open position for

the 2018-19 school year.

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Average Class Size

Table 10. Average Class Size* by Grade Level

*Average Class Size is the total registration in specified classes divided by the number of those

classes with registration.

Common Branch refers to self-contained classes in Grades 1–6.

Currently, maximum class sizes are limited in the teachers’ contract as follows:

Pre-K/ESL 15

Kindergarten/ESL 26

Grades 1-3/ESL 28

Grades 4-6/ESL 31

Grades 7-12 25

Grades 7 -12 (At-risk) 24

Grades 7 -12 Honors 29

Grades 7-12 AP 30

Chapter 59 of the Laws of 2017

The enacted 2017-18 State Budget continued $3 million in State funding for the District

(section 48 of Part YYY of Chapter 59 of the Laws of 2017). Chapter 59 of the Laws of

20174 required the District to update three major plans in collaboration with the community

stakeholders and the State Monitors:

4 Chapter 59 of the Laws of 2018 extended the requirement until June 30, 2021.

2008-09 2009-10 2010-11 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17

Common Branch 19 20 22 25 24 26 26 25 26

Grade 8

English 17 22 21 19 20 21 23 20 20

Mathematics 18 21 21 19 19 21 23 21 21

Science 19 20 21 20 20 23 22 22 21

Social Studies 18 21 22 21 20 23 24 21 22

Grade 10

English 21 21 21 20 20 22 22 18 20

Mathematics 21 20 18 21 21 22 18 20 24

Science 20 21 20 20 21 19 22 20 21

Social Studies 20 22 21 22 20 22 22 21 21

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1) Long-term (2016-2020) strategic academic plan;

2) Long-term fiscal improvement plan; and

3) Expenditure plan outlining the use of the $3 million in State funding, which the

District used in the 2017-18 school year to implement full-day kindergarten and

restore arts programs in the elementary schools.

The updated fiscal improvement plan and the comprehensive expenditure plan for the

additional $3 million in State funds for the 2017-2018 school year were developed in

consultation with the State Monitors as required by Chapter 59 of the Laws of 2017. The

2017-18 educational investments funded with the $3 million were aligned with

recommendations 8 and 10 included in the Monitors’ December 14, 2015 “Opportunity

Deferred” report:5 Recommendation 8 was to provide students with full-day kindergarten

classes and recommendation 10 was to continue investigating the feasibility of

streamlining grade configurations and start times.

Together, the three plans addressed core areas identified as needing improvement either

by the Monitors or by the District and community through the root-cause analysis exercise

that was conducted during the development of the strategic academic plan. The strategic

academic plan provides measurable objectives and explicit strategies to address areas

where improvements are needed, including but not limited to:

• Financial stability;

• Academic opportunities and outcomes for all students;

• Education of and accelerated rates of success for students with disabilities;

• Education of and accelerated rates of success for English language learners; and

• Compliance with applicable State and federal laws and regulations.

The fiscal improvement plan aligned fiscal resources with a strategic academic plan,

noted risks and liabilities, identified internal control improvement opportunities, and

examined long-term fiscal sustainability.

5 The “Opportunity Deferred” report can be accessed at: https://www.regents.nysed.gov/common/regents/files/East%20Ramapo%20Report%20Pub.pdf.

https://www.regents.nysed.gov/common/regents/files/East%20Ramapo%20Report%20Pub.pdf

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Strategic Academic Plan

The East Ramapo Central School District mission states:

“As a unified community, the East Ramapo Central School District is committed to

educating the whole child by providing a healthy, safe, supportive, engaging, and

challenging environment.”

On September 26, 2016, Commissioner Elia approved the District’s first long-term

strategic academic and fiscal improvement plan, which contained a comprehensive

expenditure plan (“improvement plan”). Thereafter, the District implemented the

improvement plan to manage resources more effectively. The plans were updated and

approved by the Commissioner in October 2017 and the District received funds in

February 2018. The plans were developed with three goals in mind:

1) Educating the whole child;

2) Improving and maintaining the physical environment of schools and grounds; and

3) Implementing a solid resource management system.

Educational Strategies

The District’s strategic plan rests on Four Pillars. The pillars define the skills and capacity

needed to achieve the District’s goals and provide a framework for the contributions of

teachers, leaders, staff, families, and community partners.

Pillar 1: High Expectations for Teaching & Learning

Standards-aligned instructional system:

• Align curriculum, assessments, materials, and pacing guides with the most current

learning standards and ensure consistent day-to-day implementation in every

school and in every classroom.

• Full-day kindergarten for all students.

• Provide access for every student to participate in integrated arts programs and

Advanced Placement, honors, and college courses.

Responsive instruction and student engagement:

• Implement a common set of research-informed core instructional practices to

facilitate culturally responsive, “good first teaching” across academic areas, grade

levels, and student groups.

• Strengthen early literacy and numeracy foundations in pre-K to grade 2 with age-

appropriate materials, supports, and ongoing staff development.

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• Strengthen student engagement and ownership of learning through a student

portfolio system that includes setting academic and behavioral goals, personal

monitoring of progress, and student-led conferences and expositions.

• Require every high school graduate to complete a concrete post-secondary plan

collaboratively with staff, peers, and parents/caregivers.

Pillar 2: Culture of Safety and Strong Relationships with Families & Community

Positive behaviors & student voice:

• Implement and monitor all tiers of the Positive Behavior and Intervention System

in every school and every classroom to create a safe culture for learning and work.

• Implement a student-to-adult or student-to-student mentoring program.

• Conduct at least one student-led summit annually as a forum for open, mutually

respectful communication among students, staff, and parents/caregivers.

Family education and collaboration:

• Provide ongoing training to parents/caregivers regarding effective strategies for

strengthening language and math skills of students in kindergarten through grade

2.

• Engage parents/caregivers in ongoing training, collaboration, and communication

to better understand and support student achievement.

• Educate parents and caregivers about how to access school and community

resources that support family health and wellness and behavioral and life success

for students.

Internships and dual degree programs:

• Develop community partnerships that provide opportunities for students to enroll

in courses at local colleges and universities and to participate in internships and

apprenticeships with local employers and community organizations.

Pillar 3: Results-Focused, Collaborative Professional Learning

Standards-based professional development:

• Define and implement the standards-aligned instructional practices that all

teachers and classroom-based support staff will master and deliver.

• Define and implement professional standards for support staff at all levels and

provide ongoing staff development aligned to those expectations.

Evidence-based collaboration:

• Provide dedicated time for teachers, leaders, and staff to engage in Data Summits

at the end of each assessment cycle, with emphasis on analyzing student data,

reflecting on professional practices, and planning for the next assessment cycle.

Teacher and administrator leadership networks:

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• Develop a cadre of highly skilled and well-trained teachers, leaders, and staff to

facilitate professional learning at the school, department, and district levels.

Pillar 4: Data-Driven, Effective, and Efficient Systems

Timely assessment system:

• Implement an assessment system to provide timely and authentic feedback about

student growth, instructional practices, interventions, and communication with

parents.

Planning, public reporting, and celebrations:

• Set performance targets and develop results-focused improvement plan for each

school and District-level unit.

• Implement a public reporting online dashboard to share school and District

progress at least three times per year.

• Organize school- and District-based ceremonies to celebrate the accomplishments

of staff and students at least twice during the academic year.

Culture of service excellence:

• Organize central roles, resources, and processes to better support schools.

• Strengthen faculty and staff professional relationships through a shared vision,

improved communication, challenging work, and career development.

• Conduct periodic staff satisfaction surveys to measure feedback and ensure staff

satisfaction.

Professional Development

The District administration believes that a healthy, safe, supportive, engaging, and

challenging learning environment is necessary to educate the whole child. In partnership

with the Efficacy Institute, staff receive ongoing training in the Efficacy School

Transformation Process (ESTP) – a comprehensive school reform process that engages

educators in the collective effort to accelerate all students to academic proficiency and

strong character. The ESTP is designed to help educators improve student engagement,

motivation, and performance.

Through workshops, coaching, and other professional development, participants engage

in a results-driven package for school transformation: mission, mindset, and method. The

three-pronged package builds consensus around a mission of academic proficiency and

strong character for all students and establishes a healthy mindset to support it — that is,

a belief in the capacity of all students (and their teachers) to learn to achieve at high

standards, backed by a data-driven method of self-directed improvement. Through critical

and compassionate reflection, educators are equipped with the knowledge and tools in

service of more equitable and inclusive learning environments.

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The District provides the following professional development opportunities:

• High-Quality learning targets that are unpacked with students to create student

ownership of learning.

• Formative assessment practices, including common checks for understanding to

be used daily in instruction.

• Engagement practices that include protocols and other strategies that challenge

student thinking.

• Use of data to inform instruction, including strategies to scaffold and differentiate

learning to meet the needs of all students.

• Leadership development and sustainability of effective teachers and principals,

including both external and internal on-site coaching.

• Standards-aligned curriculum and instruction.

• Special Education and ENL/Bilingual classroom implementation of standards-

based curriculum and instruction.

• Promoting a culture of social and emotional learning through efficacy and growth

mindset.

• Conferences, workshops, and resources designed to enhance student

achievement and engagement in learning.

• Workshops focused on the integration of core District goals and preparing students

with 21st-century skills.

• Expanded training for all aspects of the Dignity for All Students Act (DASA).

• Enhanced resources and supports for Part 154 and 154-3 implementation.

• Supporting ALL learners through instructional practice aligned with the standards

and Universal Design for Learning (UDL).

The above list is not exclusive to any one particular professional development offering.

Each item in the list above refers both to professional learning experiences that selected

individuals were required to attend and voluntary offerings (typically offered external to

the District) that enhance teacher and leader knowledge and practice. For the 2017-18

school year, the District designed and coordinated mandatory sessions that

were intensive, collaborative, job-embedded, data-driven, and classroom-focused;

specifically, Efficacy Institutes, Eureka, and EL Education on-site coaching, algebra and

global studies curriculum writing, specially designed instruction, leveraged leadership,

and quality teaching for English Language Learners. The District’s voluntary offerings

included Eureka Math August Summer Institutes, Cultivating District Leadership for ELL

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Success, New Norms for Healthy Schools Training, and Classrooms as Culturally

Responsive Learning Communities.

Academic Challenges

As noted above, test results for English Language Learners and students with disabilities

are unacceptably low. In addition, the graduation rate for Hispanic and Latino students is

very low. The District has launched the new programs described below to help improve

instruction for these students and emphasize a mindset that all students can achieve at

high levels. The programs noted below are a significant step in the right direction, but

more investment is needed to accelerate student achievement and increase graduation

rates.

Programs for English Language Learners (ELLs)

The District offers students many opportunities to receive language acquisition

instruction. The District currently offers Transitional Bilingual Education, Dual Language,

and English as a New Language classes.

Transitional Bilingual Education

Transitional Bilingual Education (TBE) Programs are currently offered to students

in kindergarten through fourth grade.

During their first year of bilingual instruction, students receive 70% of their

instruction in Spanish and 30% in English6. For every year that the student is

enrolled in the TBE program, the percentage of English instruction will increase

and instruction in Spanish will decrease by 10%. For example, when students are

in year two of the TBE program they receive 60% of their instruction in Spanish

and 40% in English. The changes in percentage of instruction in each language

continue until the student has become proficient in English as per the New York

State English as a Second Language Achievement Test (NYSESLAT), which is

administered every spring.

One-Way Dual Language Bilingual Education

The One-Way Dual Language Bilingual Education model was selected for ELLs in

grades 9-12. Unlike the TBE classes, the One-Way Dual Language classes do not

require teachers increase instruction in English and decrease instruction in

Spanish for every year that the student is enrolled in the classes. Instead, students

6 The District does not have a sufficient number of students to require creation of Haitian Creole Bilingual

Classes at the Elementary Level. All ELL students receive English as a New Language instruction as noted

below.

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can receive instruction in the core area classes (science, math, and social studies)

in Spanish. This method of language acquisition best meets the instructional needs

of the District’s high school ELL population for the two reasons described below.

Students must pass five Regents exams or complete an approved four-plus-one

graduation pathway to obtain a Regents Diploma. Regents exams are available in

Spanish, except for the English language arts Regents Exam. Therefore, providing

students with consistent instruction in their home language afford them the

opportunity to be successful on the exams.

Within the last five years, there has been a marked increase in the enrollment of

students between the ages of 17 and 20. Several research reports indicate that

learning an academic language can take between 7 to 10 years of quality

instruction in English, which makes it imperative that students continue to receive

instruction in their home language. To provide students with the opportunity to

graduate before turning 21 years old, the District builds on students’ prior

knowledge and previous instruction in Spanish.

The goal of each language acquisition approach is to maximize student academic

and linguistic achievement by providing them with instruction in English and their

home language and to foster a learning environment for English Language

Learners to succeed academically, socially, and emotionally.

English as a New Language

All ELLs receive English as a New Language (ENL) instruction. Elementary

students in a bilingual setting receive their ENL instruction with their classroom

teacher, taught through the content area such as English language arts, social

studies, and science. High school ELLs have class periods designated for ENL

instruction and taught by a teacher certified in English to Speakers of Other

Languages (ESOL). The number of periods of ENL instruction the student receives

is based on their English language proficiency level as per the New York State

Identification Test for English Language Learners (NYSITELL) or New York State

English as a Second Language Achievement Test (NYSESLAT). Students at the

beginning stages of English proficiency receive both integrated ENL and stand-

alone instruction, while those at higher levels of proficiency receive only integrated

ENL instruction.

The Monitors will continue to focus on student outcomes for these programs that

serve English Language Learners, as well as programs for students who do not

make adequate progress while in elementary school and late arriving students in

high school with an interrupted formal education.

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Student Support Services

Evaluative services (on an as-needed basis) are provided for students struggling

academically, socially, and behaviorally to help ascertain eligibility for special education

services. Students who are not eligible for special education (IEP) services, building-level

support services and 504 services are also available (these services are annotated with

an asterisk in the list below). These services include:

• Special class (Ratios: 8:1:2, 12:1:4, 12:1:2, 12:1:1, 15:1)

• Integrated co-taught classes (K-12)

• Resource room / consultant teacher*

• Speech/language therapy*

• Occupational therapy*

• Physical therapy

• Teacher of the visually impaired

• Teacher of the deaf

• Psychological counseling*

• Parent training

• Consultant audiology services

• Assistive Technology Behavior Intervention supported by Behavior Certified

Behavior Analysts (BCBAs)

At the high school level, the District is focused on improving the graduation rate for all

students and is carefully tracking the progress of every student towards graduation. The

District’s new schedule with single universal lunch period for all students provides more

time for students to receive extra help or take electives.

Enhanced Programming

The voter-approved budget7 built upon the progress made in 2016-17 and included the

following new programs:

• Summer Academic Programs

o Instrumental music summer camp for grades 4-8 (400 students)

o Computer sciences summer academy for grades 2-8 (250 students)

o Health sciences summer academy for grades 2-8 (250 students)

o Extended school year program for grades K-8 (255 students)

7 The first budget presented to voters in May 2017 included a 1% tax override. The budget was overwhelmingly defeated. The voters approved a revised budget in June within the tax levy cap. Transportation for non-public students on days when the public schools are not in session was not included in the budget.

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o Students with Interrupted/Inconsistent Formal Education for grades 9-10

(60 students)

• Elementary Education

o Arts instruction (3 teachers)

o ENL and Bilingual instruction (5 teachers)

o Academic standards facilitators

• Middle School Education

o Arts instruction (3 teachers)

o Expanded ENL and Bilingual instruction (5 teachers)


• High School Education

o Effective Instruction (8 teachers)

o Teacher collaboration model


o ENL and Bilingual Instruction (4 teachers)

• Special Education

o Increases collaborative classes (24 classes in grades 3-12)

o Increases clinical services including speech and language, occupational,

and behavior specialists

The District continued conversion of Chestnut Ridge Middle School, a Priority School, to

an International Baccalaureate (IB) School. The conversion is funded with a $2,497,895

federal School Improvement Grant that was received in the prior school year. The grant

provides funding for five years. The school is making satisfactory progress towards

becoming an IB school.

Academic Changes for 2018-19

Curriculum & Instruction

• Scheduled data-driven Professional Learning Community time (K-12)

• Middle-level Regents-level course offerings at all middle schools: Algebra 1 &

Living Environment (working toward 2 additional offerings)

• Spring Valley High School 9th Grade Academy

• 50 high school freshmen will have the opportunity to accelerate the completion of

high school studies while earning up to 60 college credits

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• District will be offering high school juniors and seniors an opportunity to earn the

New York State Seal of Biliteracy. District data shows that over 150 students have

already met many of the criteria points.

• Increase of seven collaborative special education-general education classes at the

K-8 level (moving from 12 classes to 19)

• Expansion in collaborative courses at the high schools (9th-12th) in the areas of

English, math, and science

• Ability to offer all 15 excessed teaching assistants the opportunity to return as full-

time teacher aides, to meet increased IEP mandates. Positions have been added

and will be funded by a federal IDEA Grant.

o 2 of 15 called back to a teaching assistant position within the District

o 4 of 15 have accepted positions as full-time teacher aides (1 pending)

o 4 of 15 have turned down the positions due to other job offerings

o 2 of 15 have turned down the positions due to lack of interest

o 3 of 15 did not respond or come in at the time to fill out paperwork

Arts Education & Activities

• The cultural arts after-school program will continue to grow and offer students more

time to develop their instrumental music skills. Students can participate in band,

orchestra, and elementary marching band.

• The "Little Miracles” Show Choir for 5th and 6th grade students will begin in

September after school at Kakiat.

• District will offer the "Miracles" show choir in the middle school this year for 7th and

8th grade students.

• The spring musical will be offered in each of the middle schools.

• Both high schools offer dance, fall drama, and spring musicals.

• The marching band will continue to participate in football games, local events, and

New York State Field Band competitions.

• Our students will continue to participate in New York State School Music

Association Solo and Major festivals.

• Beginning this year, general music and chorus will be offered to all students K- 6th

grade.

• Beginning this year, visual art will be offered to elementary students in all K-3 and

4-6 schools.

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• Elementary school instrumental enrollment has continued to grow from 0 in 2015

to upwards of 785 in 2018.

• All elementary schools had concerts. Many schools had additional art shows.

Fiscal Improvement Plan

Building on the Work of the 2016-17 School Year

The District’s 2017-18 student population comprises approximately 8,843 public students

and an estimated 26,825 non-public students. The public student population grew slightly

by 245 students. The non-public student population growth is estimated at over 1,500

students. Of the public student population, 89% are economically disadvantaged (as per

free and reduced lunch count) and 37% are ELLs. Furthermore, 32% are African-

American and over 60% are Hispanic.

The growth of the special education student body has an enormous impact on the District

finances. The percentage of students with disabilities in the District has grown

significantly: 54% since 2003. More importantly, this growth has happened at the same

time the total (public and non-public) student population has declined. While students with

disabilities represented 11% of the total students in 2003, it reached an all-time high of

over 19% of student population in 2016. Recently, this trend has evened out. In 2017-18,

the number of special education students saw a slight increase from the previous year,

from 1,558 to 1,578. However, the proportion of special education students relative to the

total student population decreased from 17.8% to 17.5%.

Notwithstanding the fiscal constraints due to its specific challenges, the District has

worked and continues to focus on improving its fiscal status. The District’s unassigned

fund balance has shown significant improvement during the last four years, moving from

negative to 3.6% of the 2018-19 fiscal year budget. New York State’s legal limit for a

school district’s unassigned fund balances is 4% of the next fiscal year approved budget.

The unassigned fund balance as of June 30, 2018 stood at $8,413,535. At the end of the

fiscal year 2017-18 the District added another $244,853 to this fund balance.

Comprehensive Expenditure Plan for the $3 Million Legislative Grant

The District continues to support two major academic programs with the $3 million grant:

full-day kindergarten and arts education.

In accordance with Chapter 89 of the Laws of 2017, in the 2016-17 fiscal year the District

fully implemented its first goal of providing full-day kindergarten for all students. The

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District created 28 full-day kindergarten classes, a dramatic increase from the four full-

day classes offered in 2015-16.

The District hired seven Monolingual kindergarten teachers, four Bilingual kindergarten

teachers, and one additional teacher of the arts. All classes are fully equipped with the

instructional technology including Smart Boards and desktop computers for daily

teaching. In addition, two teachers of the Arts were hired for a total of 43.5 teachers. This

school year, the District entered into a lease-purchase agreement to provide 400 musical

instruments for students. Ten elementary music classrooms were equipped with Smart

Boards and other instructional supplies.

In 2017-18, the District served 734 students in full-day kindergarten. For fiscal year 2018-

19, the entire $3 million fund will support the same services as in the previous two years

serving 707 students.

Improving School Buildings and Grounds

The District has responded to the Monitors’ Recommendation 3 included in the December

14, 2015 “Opportunity Deferred” report to create a comprehensive and community-

inclusive process to develop a new bond issue for purposes of making much-needed

capital improvements. During the 2016-17 fiscal year, the District refocused its efforts to

secure financing for its infrastructure needs. It held and passed a bond referendum on

December 6, 2016. The referendum contained the following:

• Bonding $58,018,350 to address the most critical work needed in all District

buildings, including basics such as roofs, boilers, air ventilation units, and

windows.

• Authority to use $1,127,920 of State EXCEL funds for new windows/doors,

exterior doors, and the small courtyard windows at Kakiat Elementary and new

windows at Fleetwood Elementary.

The capital construction is being phased over a four-year period that began in the summer

of 2017.

• Phase I was started in the summer of 2017 with more than $16 million. It was

successfully implemented with major capital work completed on four school

building roofs and the administrative building’s roof, two high school athletic

fields, two school building boilers, and K-8 model school conversion work at

Kakiat STEAM Middle School.

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• Phase II accounts for an estimated $24 million that was started in early Spring

of 2018 and will be completed in December. Major capital work was completed

or is being done in 11 school buildings, including eight roofs, six boilers, three

ventilation systems, phase II of K-8 model school conversion work at Kakiat

STEAM Middle School, and a new library at Chestnut Ridge Middle School.

• Phase III, accounting for an estimated $19 million, will start in Spring of 2019.

Phase III includes roofing, boilers, windows, and paving at the remaining

buildings.

Improved Fiscal Condition

In 2017-18 fiscal year, the District fiscal stress designation8 by the Office of State

Comptroller improved from “moderate fiscal stress” with a score of 51.7% to “no

designation” with a fiscal score of 23.3%. The Comptroller’s office designates districts as

significantly stressed if the fiscal stress score falls between 65-100%. Given that in 2014-

15 the District’s fiscal stress score was 86.7%, the District has made significant fiscal

improvement.

The primary reasons for the District’s upgrade include restoration of fund balance and

several years of balanced budgets. Based on the preliminary 2018-19 fiscal year audit

numbers, which indicate an assigned and unassigned fund balance total of 3.6% of the

approved 2018-19 budget, the District expects to maintain a fiscal stress level of “no

designation.” In addition, Moody’s rating for the School District remains at Baa2 with

outlook “stable.”9

Potential Risks and Future Liabilities

During 2017-18, the District focused its attention on assessing potential risks and future

liabilities as well as resolving as many of them as possible. Below is a full list of identified

liabilities and an update on the work to address them:

• In 2011, the District entered into an energy performance contract with Johnson

Controls, Inc. to install numerous energy efficient controls and devices throughout

the School District's buildings. Due to disagreements regarding the contract and

8 The Office of the State Comptroller’s Fiscal Stress Monitoring System Search Tool can be found at: http://wwe1.osc.state.ny.us/localgov/fiscalmonitoring/fsms.cfm. 9 Additional information about the district’s credit rating can be found at: https://www.moodys.com/credit-ratings/East-Ramapo-Central-School-District-NY-credit-rating-600033656.

http://wwe1.osc.state.ny.us/localgov/fiscalmonitoring/fsms.cfm

https://www.moodys.com/credit-ratings/East-Ramapo-Central-School-District-NY-credit-rating-600033656

https://www.moodys.com/credit-ratings/East-Ramapo-Central-School-District-NY-credit-rating-600033656

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project funding, this matter proceeded to mediation. There is now a Board-

approved agreement between the District and Johnson Controls to pay $1 million

over a five-year period starting in fiscal year 2017-18. In July 2018, the District

made its second payment of $200,000 towards this settlement.

• In 2011-2012, the District charged the school lunch fund for $724,616 for capital

expenditures that did not receive prior approval by New York State Education

Department. The District entered in a Board-approved agreement to reimburse the

school lunch fund for the above amount during a seven-year period starting from

2017-18.

• The District has an ongoing unresolved issue with the Ramapo Central District

about the processing of claims for parentally placed non-public students who

reside in East Ramapo. The District has filed an application for “administrative

review of a claim for payment” with the New York State Education Department.

The amount involved is $183,645 that East Ramapo owes the Ramapo Central

School District (Suffern) for the fiscal years of 2013-14 and 2014-15.

• School transportation was a significant area of weakness in 2017-18. Bus runs

were scheduled inefficiently, resulting in higher costs than budgeted and

necessitating mid-year adjustments in bus routes.

2018-19 Contingency Budget

The voters twice defeated the Board-approved budget. As required by law, the Board

adopted a contingency budget which represented the elimination of $4,375,787 from the

Board-approved 2018-2019 budget. The 2018-19 school budget is fiscally in balance with

projected revenues of $231,084,269 and expenses of $231,084,269. The 2018-19 tax

levy is $151,461,007 and was frozen at the prior year’s level (there was a 1.48% tax levy

increase for the 2017-18 school year). The budget does not include an allocation for

transportation to non-public schools on days that public schools are closed, nor does it

allow for flexibility regarding when transportation is provided for non-public students.

Table 11. Sources of Funds to Meet Contingency Budget Reduction of

$4,366,787

Use of Fund Balance

Reduction in Principal

Payment to Capital

Bond

Reductions of Staff,

Services, and

Retirements

$959,000 = 21.8% $1,163,742 = 26.6% 2,253,045 = 51.6%

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The proposed budget accounted for 15 retiring teachers. Accounting for the savings from

three teaching assistants added $148,462 to the savings. The total savings from 14

additional retiring teachers in addition to the 15 anticipated retirements saved an

additional $252,000. The savings also included the retirement of the Assistant Director of

Transportation, who was replaced by a staff member with a lower salary. The difference

between the salaries resulted in a savings of $31,600. No teachers were laid off.

Additional cuts and attrition included:

• The Director of Secondary Education, a position that was included in the originally

proposed budget, will assume supplemental and school improvement

responsibilities that allow for the position to be 80% funded by alternative funding

streams, coming to $151,222 to be saved in the general fund.

• The Director of Elementary Education will also devote a greater percentage of time

on remedial pedagogy and programs (up to 80%), resulting in a general fund

savings of $57,203.

• The clerical staff will be reduced by two staff members, representing a savings of

$231,352.

• Increasing the percentage of service to other funding sources for one storekeeper

and one clerical (up to 80% grant funded) resulted in a savings of $40,381.

• Special education will reduce 15 teaching assistants from non-mandated

programs, totaling $625,000 in savings. The District’s shift to a collaborative

teaching model reduced the number of teaching assistants required. All teaching

assistants were offered positions as teacher aides. Students with disabilities will

continue to receive all services dictated by their Individualize Education Plans

(IEPs).

• The reduction of one nursing staff member represents a savings of $67,123.

• The retirement of the Safety Supervisor in the Transportation Department

contributed $131,508 to the total savings because the District is not filling the

position. The District’s Transportation Director will oversee safety.

• Reducing central administration non-salary expenses, such as, supplies and

materials resulted in $26,194 savings.

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Implemented Monitor Recommendations

The District implemented several of last year’s Monitors’ recommendations including:

• Convening an advisory group to review existing polling site locations and

recommend changes to address access and overcrowding. As a result, the Board

approved two new polling sites.

• Convening a budget advisory committee,

• Creating a newsletter and videos,

• Pre-approved non-public textbooks, and

• Improved translation tools on the new District website.

Concerns

More than 93% of school districts have passed their budgets on the first or second vote

in the last five years. East Ramapo is an outlier with three contingency budgets in the last

five years. Looking ahead, it remains critical the community comes together to build

support for school budgets, especially those that adhere to the tax cap.

The estimate for simply maintaining support for existing academic programs and

increasing bus ridership is more than $20 million over the next five years. Failure to pass

any budget over the next five years will result in virtually all the cuts coming out of

academic programs, which comprise the bulk of the budget. Budget defeats mean larger

class sizes, fewer supports for English Language Learners and students with disabilities,

and reductions in Advanced Placement and college course offerings. In addition, budget

defeats threaten the District’s ability to recruit and retain highly qualified teachers and

administrators.

For this district, it is not enough to simply pass a budget within the tax levy cap. As noted

above, the District has already fallen behind other districts that have managed to

consistently pass budgets. The only way for the District to catch up is to begin passing

small tax levy cap overrides.

Transportation and healthcare currently represent more than 25% of the budget and have

been growing at more than 5% annually – more than twice the rate of inflation.

Transportation costs are driven primarily by increases in ridership. Healthcare costs are

driven by significant increases in health insurance and prescription drug prices. It is critical

the District find ways to contain these costs.

East Ramapo is at a crossroads. Significant improvements have been made in classroom

instruction and leadership, and school buildings and facilities are being brought up to

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current standards. However, the District cannot sustain another contingency budget. It is

unclear what level of tax levy the community would support. Budgeting is not a one-year-

at-a-time activity. The Monitors are committed to working with the entire community to

forge a long-range plan for success.

Recommendations

1. The Board of Education and the Superintendent should reach out to the community

to explain how strong public schools can benefit everyone in the community.

2. The District should prepare charts showing the following annual trends over the

last five years:

• General fund revenues and expenditures;

• Fund balance and operating surplus/deficit;

• Local tax levy and State Aid; and

• Budgeted versus actual State Aid.

3. Create a community workgroup to establish a five-year budget plan to adequately

support students and outline the federal, State, and local revenues needed to

support the plan. The workgroup should solicit input from the community on

student achievement goals, graduation rates, equity, non-public transportation,

and tax tolerance.

4. The District should develop a primer for the public on how funds are allocated for

non-public students and post the primer on the District web site.

5. Seek a change to the pre-K State Aid formula to include a count of non-public and

public students. Pre-K programs in East Ramapo serve all students in the District,

including a significant number of students who will attend non-public K-12 schools.

6. The District should request an audit of the transportation program by the New York

State Comptroller to establish a baseline for performance improvements and cost

efficiencies.

7. All Board members and District staff should attend the District’s training related to

adopting a mindset that all children can learn and the District’s efficacy approach.

It is critical that the District is successful in changing attitudes to reflect the

expectation that all students can be successful.

8. The District should digitize the ordering, lending, and inventory of pre-approved

textbooks to non-public schools to ensure schools receive their textbooks in a

timely fashion.

Documents

Balanced Budget: A Report on the East Ramapo Central School … · 2019-01-31 · 1 Commissioner’s Charge to the Monitors On August 16, 2016, New York State Education Department